Published: 19 March 2025
Key findings
Agency use of messaging apps
Messaging apps have become a staple of digital communication within the Australian Public Service. Out of 22 surveyed agencies, 16 (73%) have embraced messaging apps for work-related purposes. Conversely, 3 agencies (14%) have outright prohibited their use, while another 3 (14%) remain undecided on the matter.
Agency policies and practices around messaging apps
Despite their widespread adoption, the policies governing the use of messaging apps often fall short of aligning with statutory obligations outlined in the Freedom of Information Act 1982 (FOI Act), Privacy Act 1988, and Archives Act 1983. Among the 16 agencies that allow messaging apps, only a fraction have established policies that adequately reflect these legal requirements. Of the 7 agencies that shared their policies, 5 addressed essential security classification needs, while 6 failed to cover necessary archiving protocols. Alarmingly, 5 agencies did not adequately address FOI search requirements, and none mandated the use of official accounts or devices for work-related messaging.
Recommendations
The report offers a roadmap for agencies to formulate policies that ensure compliance with FOI, privacy, and recordkeeping requirements when utilizing messaging apps. Agencies are encouraged to:
- Review or establish clear policies regarding the permissibility of messaging apps for work purposes.
- Develop comprehensive procedures that address information management, FOI, privacy, and security considerations.
- Assess the necessary features of messaging apps that support official work and conduct due diligence on selected applications.
- Ensure that any preferred messaging app appropriately collects and manages personal information, potentially through a privacy threshold assessment.
Foreword
The digital landscape necessitates a transition from a compartmentalized to a holistic approach to information governance within government agencies. The traditional definitions of what constitutes a ‘document’ or a ‘record of an agency’ can no longer be applied in isolation. We must adopt a broader perspective on our information governance obligations, integrating the statutory safeguards established by Parliament to treat information as a national resource for public benefit.
Key questions arise for leaders, including agency heads and oversight bodies:
- How is information managed—internally or through outsourcing?
- What governance requirements apply?
- How are these requirements being met?
- What information is being collected or preserved, and why?
- How robust are our systems in managing these governance requirements?
These inquiries are vital for all leaders, especially in our increasingly digital environment. As the regulator of information access and privacy rights, the Office of the Australian Information Commissioner (OAIC) prioritizes these concerns. The creation and maintenance of records are essential to uphold legislative requirements and the fundamental rights of information access and privacy.
Message from National Archives of Australia Director-General Simon Froude
The insights from this report significantly enhance our understanding of how Australian Government agencies utilize messaging apps and the challenges they face in managing these records. In our rapidly evolving digital landscape, it is crucial that information governance remains at the forefront of our regulatory framework to combat disinformation and uphold public trust in government.
National Archives is committed to improving information management maturity through the release of advice and guidance, ensuring that agencies can effectively create, capture, manage, and reuse records, information, and data generated daily.
Increasing use of messaging apps
As technology has advanced, messaging apps have emerged as popular communication tools among government officials, offering security and convenience. However, these apps also introduce unique challenges for recordkeeping, FOI, and privacy. Unlike traditional communication methods, the information exchanged via messaging apps is often not stored on government servers, leading to potential compliance issues.
Part 1: Agency use of messaging apps
Do agencies permit the use of messaging apps?
Among the 22 agencies surveyed:
- 73% allow messaging apps for work purposes.
- 14% prohibit their use.
- 14% have no established position on their use.
Are agency staff likely to be using messaging apps?
In agencies that permit messaging apps, a majority of respondents indicated that staff are indeed using these apps for work-related communication.
What messaging apps are agencies using?
Of the 16 agencies that allow messaging apps, 69% prefer Signal, while a smaller percentage endorse both Signal and WhatsApp. Notably, preferences vary by agency size and function.
Do agencies that permit messaging apps have policies or procedures about their use?
Half of the agencies that allow messaging apps have established policies or procedures governing their use. However, there is a notable gap in comprehensive guidance, particularly regarding the handling of personal information and compliance with FOI requirements.
Part 2: What are agencies’ policies and practices regarding the use of messaging apps?
Among the agencies with policies, there is a need for alignment with legislative requirements, particularly concerning record creation, retention, and security classification. Only a minority of agencies address the specific challenges posed by disappearing messages, which could lead to non-compliance with the Archives Act.
Part 3: Findings and recommendations
The findings underscore the widespread use of messaging apps across government agencies, highlighting the necessity for robust policies that reflect legislative obligations. Recommendations include:
- Agencies should develop clear policies regarding the use of messaging apps.
- Policies must address recordkeeping, FOI, privacy, and security considerations.
- Agencies should consider adopting a single messaging app to streamline communication and compliance efforts.
Part 4: Appendices
Appendix A: Methodology
The survey conducted by the OAIC involved 25 Australian Government agencies, with 22 responding. The aim was to assess the use of messaging apps and the policies in place to guide their use for official business.
Appendix B: Transmittal letter
This report serves as a critical resource for understanding the implications of messaging app usage within government agencies and the associated statutory obligations. The findings and recommendations aim to enhance compliance and ensure the preservation of public trust in government operations.
